CAN cancun building blocks october2010 1
CANCUN
BUILDING BLOCKS
ESSENTIAL STEPS ON THE ROAD TO A FAIR,
AMBITIOUS AND BINDING DEAL
“Climate change is not going away. The risks –
and costs – of inaction grow each year. The more
we delay, the more we will have to pay – in lost
opportunities, resources and lives.”
– Ban Ki-moon, Secretary-General of the United Nations, July 2010
2
Climate Acion Network – Internaional is a coaliion
of roughly 500 environmental and development nongovernmental organizaions worldwide commited to
limiing human-induced climate change to ecologically
sustainable levels.
For further informaion on Climate Acion Network
Internaional, including more detail on policy posiions,
please see our website: www.climatenetwork.org
Or contact:
David Turnbull
Director
Email: dturnbull@climatenetwork.org
Julie-Anne Richards
Internaional Policy Coordinator
Email: jrichards@climatenetwork.org
This document was prepared by Julie-Anne Richards,
with input from Climate Acion Network Internaional’s
members. We thank all of them for their input, in
paricular we would like to thank CAN’s policy working
group coordinators who played a large role in puing
this document together: Sven Harmeling, Germanwatch;
Rachel Berger, Pracical Acion; Raju Pandit Chhetri, United
Mission to Nepal (UMN); Sara Shaw, Tearfund; Wael
Hmaidan, IndyAct; Nina Jamal, IndyAct; Raman Mehta,
AcionAid; Steve Herz, Greenpeace; Gaines Campbell, Vitae
Civilis; John Lanchbery, RSPB; Chris Henschel, Canadian
Parks and Wilderness Society; Melanie Coath, RSPB;
Dalindyebo Shabalala; Tirthankar Mandal, WWF India;
Victor Menoi, Internaional Forum on Globalizaion;
Stephen Porter, Centre for Internaional Environmental
Law; Srinivas Krishnaswamy; Eva Filzmoser, CDM Watch;
Naoyuki Yamagishi, WWF Japan; Pat Finnegan, Grian.
October 2010
Cancun Building Blocks – Climate Action Network International
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Cancun Building Blocks – Climate Action Network International
SUMMARY
COP16 at Cancun must be a signiicant stepping stone to
a full fair, ambiious and binding deal at COP17 in South
Africa. Paries at COP16 must take decisions on important
policy areas, establish a clear vision for COP17, and agree
a process for reaching a full fair, ambiious & binding deal,
including the following benchmarks1:
A global understanding of ambition and
shared effort
• COP16 should commission a technical paper on
the scieniic, technical and socio-economic issues
relaing to temperature increase of 1.5°C to inform
COP17 decisions.
• COP16 should establish a mandate to agree an
equitable efort sharing approach between developed
and developing countries by COP17, consistent with
the equity principles of the UNFCCC, the historical
responsibility of developed countries, and the right to
sustainable development of developing countries.
Developed country emission reductions
• At COP16 developed countries should agree an
aggregate reducion target of more than 40% below
1990 by 2020. Should they fail to commit to this
target, they must acknowledge the gigatonne gap
between current pledges and science based targets,
and agree a mandate to negoiate by COP17 the
needed aggregate reducion target of more than 40%
below 1990 levels by 2020.
- Developed countries should commit to a
mandate to negoiate by COP17 individual
legally binding quaniied emission reducion
commitments (QERCs) relecing comparable
efort and summing to the needed aggregate
target of more than 40%.
- Agree at COP16 that each developed country
will produce a Zero Carbon Acion Plan by 2012.
- At COP16 developed countries should
clearly state that their emission reducion
commitments will be subject to an efecive
measurement, reporing and veriicaion
(MRV) and compliance system within the
Kyoto Protocol, whilst ensuring comparable
MRV and compliance for the United States.
COP 17 should codify these stringent MRV and
compliance rules.
- COP16 should agree robust rules to ensure
developed countries honestly meet their
emission reducion targets by minimising
loopholes, including:
- Land use, land use change and forestry
rules that increase accountability and
strengthen the level of ambiion of
developed countries such that forestry
and land use sectors deliver emissions
reducions.
- Market mechanism rules that improve
environmental integrity, prevent double
couning, and strengthen the ability to
transform economies.
- Rules that minimise damage from hot air
(surplus AAUs).
Developing country mitigation actions
• At COP16 developing countries should agree to
produce climate resilient Low Carbon Acion Plans,
opional for least developed countries and small
island developing states, coningent upon support
from developed countries.
- COP16 should establish a mechanism to enable
developing country naionally appropriate
miigaion acions (NAMAs) to be matched with
support. Guidelines including MRV, should be
adopted by COP17.
- At COP17 developing countries as a group should
commit to developing NAMAs amouning to the
deviaion from business as usual ideniied in the
efort sharing approach, whose implementaion
would be coningent on the necessary support
being provided by developed countries.
- At COP17 a science-based review process
should be established to idenify the total
miigaion forecast from developing country
LCAPs and NAMAs, and assess whether this is
in line with the miigaion needed in developing
countries to contribute to keeping warming
below 1.5°C, as ideniied in the efort sharing
approach. A process should be established
to address any gap (or shorfall) in miigaion
occurring in developing countries. This is
likely to involve an increase in funding from
developed countries.
1 CAN recognises a diversity of views within its 500 members on the views expressed in this summary. Detailed references are provided throughout.
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Cancun Building Blocks – Climate Action Network International
• At COP16 all Paries shall collecively aim to stop
deforestaion and degradaion of natural forests
and related emissions completely, by 2020. A
commitment to suicient inance is required to meet
this goal. Studies indicate that halving emissions by
2020 would cost between $15 and 35 billion annually
in 2020.
Supporting global efforts to address climate
change and adapt to its effects
• COP16 should establish a Climate Fund to receive the
vast majority of long-term inance.
- COP16 should establish a governance structure
for the new fund that is transparent, regionally
balanced and ensures the COP decides policies,
programme prioriies and eligibility criteria. It
should enable direct access to funds.
- COP 16 should iniiate a process to secure
innovaive sources of public funding by COP 17.
COP17 must agree to implement speciic innovaive
sources of public inance and to a formula of
contribuions from each developed country.
- COP 16 must build on the $100 billion
commitment made in Copenhagen, by agreeing
that developed countries will scale up their
support to new and addiional public inance
by 2020 and establish a review process to
periodically reassess the adequacy of inancial
support, the irst assessment being completed
in 2015.
- COP 16 should establish common measurement
and reporing formats, on inancial support by
developed countries, including annual ‘climate
inance inventories’, to make comparisons and
veriicaion possible.
• COP 16 should immediately establish a Capacity
Building Technical Panel, with suicient resources to
begin funding fast-start capacity building for naional
proposals on adaptaion, technology, REDD and
miigaion-acion programmes and prioriies.
• COP 16 should establish a Technology Execuive
Commitee (TEC) to develop, by COP17, a Global
Technology Objecive and Global Technology Acion
Plans or Roadmaps to guide Climate Technology
Centres (and regional centres and members of the
Climate Technology Network).
• COP 16 must agree an Adaptaion Framework to
urgently and signiicantly scale up acion at the
local, naional, regional and internaional levels and
ensure focus on the needs of the poorest and most
vulnerable people and ecosystems.
- COP16 should establish an Adaptaion
Commitee to coordinate adaptaion eforts;
support developing countries to obtain
informaion, build capacity to adapt to the
impacts of climate change; and ensure that
suicient technology and inancial support
is provided in light of updated science and
impacts.
- COP 16 should establish a mandate to address
loss and damage caused by extreme and
slow-onset climate change beyond the limits
of adaptaion, eg severe looding or sea level
rise, deseriicaion. COP17 must create a
mechanism to address loss and damage,
especially for the poorest and most vulnerable.
Clarity on the legal framework and path
forward
COP 16 should establish a mandate to provide clarity on
the legal form of the outcome to be agreed at COP17.
As a minimum the legal mandate should include a
second commitment period of the Kyoto Protocol, and a
complementary agreement under the LCA track including:
comparable miigaion commitments by the United States,
inancial commitments by developed countries, and
developing country acion. Both tracks should produce a
legally binding and enforceable outcome in accordance
with the principle of common but difereniated
responsibiliies.
COP16 must also outline a imeline, workplan, number
of meeings, and the format of negoiaions in order to
provide certainty to the negoiaions.
Addiionally COP16 must begin to plan for the negoiaion
of commitments beyond the next commitment period,
foreshadowing a process informed by the latest science,
including the 1.5o Technical Paper and the IPCC 5th
Assessment Report, ending in 2015 at the latest.
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THE POST-COPENHAGEN ROAD
A fair, ambiious and binding deal is needed more urgently
than ever. Climate science is more compelling by the day.
Impacts are coming harder and faster. Disastrous looding
in Pakistan, heat waves and forest ires in Russia and
hotest recorded temperatures around the globe, amongst
other devastaing climate-related events, all point to the
need for urgent acion. Levels of warming once thought to
be safe, may well not be, 1.5˚C is the new 2˚C.
Negotiations Post-Copenhagen
Copenhagen was a watershed moment for public interest
and support for climate acion – and people have not lost
interest. More people in more countries than ever have
put their governments on noice that they expect a fair,
ambiious and binding global deal to be agreed urgently.
Trust-building is essenial ater the disappointment of
Copenhagen. Developed country leadership must be at
the core of trust building eforts. Countries must show
their commitment to the UNFCCC process by driving it
forward with poliical will and lexible posiions, rather than
endless rounds of repeiive negoiaions. Many countries
are troublingly pessimisic for Cancun, and are working to
lower expectaions. While others, including countries most
vulnerable to climate change, maintain high expectaions.
Challenges ahead of Cancun
There are many challenges to geing a full fair, ambiious
and binding deal at Cancun, including:
• Lack of a shared vision for the ulimate objecive of
the agreement, and the equitable allocaion of the
remaining carbon budget and emissions reducion/
limitaion commitments;
• Sharp divisions on the legal form of an eventual
outcome;
• Failure of the US Senate to pass comprehensive
legislaion this year; and
• Current economic diiculies facing many countries,
which make it diicult to mobilize the substanial
commitments to long-term climate inance needed as
part of any ambiious agreement.
Positive moves afoot
However, more and more countries, both developing and
developed, are stepping up their eforts to pursue lowcarbon development and adaptaion, despite the absence
of an internaional agreement. This can be seen in a variety
of ways:
• Investments in renewable energies have coninued
their exponenial growth, increasing to 19% of global
energy consumed;
• Progressive countries are working to move the
negoiaions forward;
• There is a growing percepion that low-carbon and
climate-resilient development is the only opion to
sustainably ensure the right to development and
progress in poverty reducion.
So, what does a pathway forward look like?
Firstly we must learn the lessons of Copenhagen. The
“nothing’s agreed unil everything’s agreed” dynamic from
Copenhagen could mean that nothing would be agreed
in Cancun. An agreement in Cancun should instead be a
balanced and signiicant step toward reaching a full fair,
ambiious & binding deal at COP 17 in South Africa. This
will require paries to work together in good faith to create
suicient gains at Cancun, and a clear roadmap to South
Africa. This paper outlines how that could be achieved.
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MITIGATION
Level of ambition
• Global emissions must peak in the next 5 year
commitment period (around 2015).
• COP16 should commission a technical paper for
release well before June 2011 on the scieniic,
technical and socio-economic issues relaing to
temperature increase of 1.5°C above pre-industrial
levels. The 1.5°C Technical Paper should inform,
inter alia, emissions reducions and equitable efort
sharing deliberaions.
Effort sharing
• COP16 must establish a mandate for an equitable
efort sharing approach between developed and
developing countries to be agreed by COP17. This must
be consistent with the equity principles of the UNFCCC
including common but difereniated responsibiliies
and respecive capabiliies. All countries must play a
part in the global efort, but developed countries must
fairly and equitably take the lead. The efort sharing
approach could establish the level of acion to be taken
by developed countries, take into account the level of
autonomous acion planned in developing countries,
and calculate the level of supported emissions
reducions required in developing countries, and the
corresponding funding that needs to be provided by
developed countries to enable miigaion aciviies in
developing countries.
COP16 developed countries
• Developed countries should agree an aggregate
reducion target of more than 40% below 1990 by
20202.
• Should developed countries fail to commit to the
needed aggregate target, they must acknowledge the
signiicant gigatonne gap between current pledges
and what science demands. Paries should then
agree a mandate to negoiate by COP17 the needed
aggregate reducion target, that is, more than 40%
below 1990 levels by 20203.
• All developed countries should commit to a mandate
to negoiate by COP17 individual legally binding
quaniied emission reducion commitments (QERCs),
summing to the needed aggregate target and
relecing comparable efort4.
• Developed countries should agree that their
emission reducion commitments will be subject to
a comprehensive and efecive MRV and compliance
system building on the provisions in the Kyoto
Protocol, and ensuring comparable MRV and
compliance for the United States.
• Guidelines should be agreed for producion of Zero
Carbon Acion Plans (ZCAPs) by each developed
country, to be completed iniially by 2012, providing a
long term trajectory to 2050.
• Robust rules should be agreed to improve environmental
integrity and minimise loopholes, including:
- Accouning for emissions and removals from
Land Use, Land Use Change and Forestry
(LULUCF) must be based on actual changes
in anthropogenic emissions seen by the
atmosphere. The level of ambiion of developed
countries must be strengthened by LULUCF
rules that have accouning integrity and provide
incenives for the protecion and enhancement
of sinks and reservoirs and the delivery of
emission reducions from this sector.
- Developed countries must account for any
increases in emissions from forest management
(mandatory).
- COP16 should establish an ambiious work
programme to resolve data quality issues in
LULUCF that leads to the eventual introducion
of comprehensive accouning. Accouning
for emissions/removals from cropland
management, grazing land management and
revegetaion should become mandatory using
a hotspots approach as soon as data quality
issues can be resolved. A new acivity should
also be added for the accouning of emissions
from wetland management.
- Emissions resuling from bioenergy producion
must be accounted for either in the energy or
LULUCF sector.
- Market mechanism rules that improve
environmental integrity and strengthen the
ability to make the transformaional change
needed to solve climate change. These rules
must prevent double couning. In other words
developed countries should not count the
purchase of ofsets or generaion of ofsets
2 Environmental Defense Fund, Natural Resources Defense Council and The Nature Conservancy do not endorse this posiion.
3 Environmental Defense Fund, Natural Resources Defense Council and The Nature Conservancy do not endorse this posiion.
4 One possible way forward would be to have a common space discussion under 1bi of the LCA, which would allow all developed countries to discuss their
future commitments together, so that efort can indeed be compared and efort divided equitably. Outputs from this discussion could then be brought back in to
the KP discussions.
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Cancun Building Blocks – Climate Action Network International
for their own compliance as meeing their
obligaion to provide substanial, secure,
predictable MRV public inance for miigaion
and adaptaion in developing countries. Nor
should the emissions reducions achieved via
ofsets be counted towards both developed
countries’ emission reducion commitments
and the deviaion from BAU in developing
countries.
- Rules must be agreed to minimise damage
from hot air / surplus AAUS in the second
commitment period. These could include
seing a discount factor and/or adjustments
of aggregate emission reducion targets for all
developed countries to compensate.
COP 16 Developing Countries
• A imetable, guidelines and necessary support for
developing countries to produce climate resilient Low
Carbon Acion Plans (LCAP) should be agreed. Where
possible LCAPS should be delivered by 2012, with a
later date agreed for developing countries with low
capacity. LCAPS should be opional for LDCs and SIDS.
• A facility/mechanism for developing country NAMAs
for which support is sought should be established.
A mandate must be given to SBSTA and SBI to develop
relevant NAMA guidelines and technical issues,
including MRV, for adopion by COP17.
• The scieniic review and MRV at large must serve a
facilitaive, rather than an enforcement or compliance
funcion, for developing countries.
COP 17 Developed Countries
• Developed countries as a group must commit to an
aggregate reducion target of more than 40% below
1990 levels by 20205.
• Developed countries should commit to individual
legally binding QERCs, summing to the needed
aggregate target and relecing comparable efort.
• A robust MRV and compliance mechanism must be
established, at least as strong as that currently in
the Kyoto Protocol and ensuring comparable MRV
and compliance for the United States, to ensure cuts
take place.
below 1990 levels by 2020, there is no room – or
indeed need – for ofsets6.
• Developed countries should have established an
accouning system for emissions and removals from
LULUCF that strengthens developed country ambiion
and is based on changes in anthropogenic emissions
seen by the atmosphere.
• Developed countries should submit preliminary
informaion about their Zero Carbon Acion Plans (ZCAPs)
which should be conirmed as being due in 2012.
COP17 Developing Countries
• Developing countries as a group should commit to
developing NAMAs amouning to the quaniied
substanial deviaion from business as usual
ideniied in the equitable efort sharing approach,
whose implementaion would be coningent on the
necessary support, technology and capacity building
being provided by developed countries.
• NAMAs should form part of Low Carbon Acion Plans
(LCAPS), with the necessary support from developed
countries. LCAPs should be opional for LDCs and SIDS.
A climate fund must be fully established to ensure
developed countries meet their inance obligaions
and developing countries implement their acions.
• A science based review process should be established
to idenify the total miigaion forecast from
developing country LCAPs and NAMAs, and assess
whether this is in line with the miigaion in developing
countries needed, in the efort sharing approach
agreed, to keep warming below 1.5oC. A process
should be established to address any gap (or shorfall)
in miigaion occurring in developing countries. This is
likely to involve an increase in funding from developed
countries to fund the emissions reducions required in
developing countries.
REDD
Reduced Emissions from Deforestation and
Degradation
An agreement on REDD at COP 16 in Cancun should include
the following:
• A goal along the following lines for reducing emissions:
• The use of ofsets must be limited. As long as
developed country targets fall short of ensuring that
domesic emissions are reduced by at least 30%
- All Paries shall collecively aim to reduce
greenhouse gas emissions from deforestaion
5 Environmental Defense Fund, Natural Resources Defense Council and The Nature Conservancy do not endorse this posiion.
6 Conservaion Internaional, Environmental Defense Fund, Natural Resources Defense Council, The Nature Conservancy, The Woods Hole Research Center, and
IPAM (Amazon Environmental Research Insitute) do not endorse this posiion.
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and forest degradaion of natural forests
in developing countries, with the objecive
of stopping deforestaion and degradaion
of natural forests and related emissions
completely, by 2020.
• For the conservaion of exising carbon stocks,
enhancement of carbon stocks and sustainable
management of forests a second objecive could be:
- All Paries shall collecively aim to conserve
exising natural and modiied natural forests by
2020, ceasing conversion and instead restoring
degraded natural forest. In addiion, all paries
should undertake the sustainable management
of forests and enhance forest carbon stocks.
• These goals should be coningent upon adequate,
predictable and sustainable inance provided in a
transparent manner. This could be in terms of a
quaniied commitment; for example, a number of
studies have indicated that to halve emissions by
2020 would cost between $15 and 35 billion in 2020.
Alternaively, there could be a commitment simply to
supply suicient inance to allow the carbon-related
goals to be met.
• Interim REDD inance should prioriise capacity
building.
• Social, environmental and governance safeguards
should be adopted and operaionalised; they should
also be made subject to independent and veriiable
monitoring and reporing (along with the carbon and
inance provisions).
• All Paries should address drivers of deforestaion
and degradaion, rather than just developing country
paries as proposed at present.
• A Decision tasking SBSTA to address outstanding
REDD+ technical issues is essenial if the
consideraion of these issues is to be concluded in
South Africa.
FINANCE
With respect to international inancing for climate
actions, COP16 should address the following:
• Establish a Climate Fund under the COP as an
operaing enity of the inancial mechanism of the
Convenion and designate it to receive the vast
majority of long-term inance.
• Establish a governance structure for the new Fund
that (1) is transparent and accountable; (2) gives
the COP the authority to decide on its policies,
programme prioriies and eligibility criteria; and (3) is
governed by a Board whose membership is equitably
balanced among the 5 UN regions, and has addiional
designated seats for most vulnerable countries and
civil society/afected community members, and is
approved by the COP.
• Establish procedures for creaing funding “windows”
for e.g. adaptaion, miigaion, technology transfer,
REDD and capacity building.
• Establish a secretariat for the Fund, independent of
the trustee, and directs the board, in consultaion
with relevant experts, to administer a compeiive
bidding process for a trustee.
• Enable direct access to funds by naional implemening
and funding eniies that ensure access by subnaional
governments and non-governmental eniies.
• Establish a new body under the authority of the COP
to oversee the new climate fund and other operaing
eniies of the inancial mechanism, coordinate with
other delivery channels of climate inance, and execute
other funcions delegated by the COP.
• Regarding sources:
- Iniiate a process under the UNFCCC to
secure innovaive sources of public funding in
accordance with principles of the Convenion
by COP17. This process should be informed,
where appropriate, by the indings of other
iniiaives such as the High Level Advisory Group
on Climate Finance and the Leading Group on
Innovaive Financing for Development.
• Regarding scale:
- Build on the commitments made in Copenhagen,
by agreeing that by 2020, developed countries
will provide at least $100 billion in public inance
that is new and addiional to exising aid targets,
as a signiicant milestone towards achieving the
public funding actually required.
- Establish a review process to periodically
reassess the adequacy of inancial pledges in
light of the best available climate science, the
degree of emissions reducions achieved, and
esimates of developing country needs. The irst
assessment should be completed in 2015.
- Establish inancing targets for the 2013-2020
ime period.
• Regarding Finance MRV:
- Establish a process to adopt common
measurement and reporing formats for inance
contribuions to ensure consistency of reporing
and make veriicaion and comparisons possible.
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- Agree to include annual ‘climate inance
inventories’ as part of annual reporing.
By COP17:
- Approve the rules, procedures, and guidelines
of the fund including policies to ensure that
funded proposals: 1) prioriize the needs of
women and other vulnerable populaions; 2)
respect rights, livelihoods, ecosystems and
naional plans and are 3) developed through
procedures that are paricipatory, transparent
and accountable.
- Agree to implement speciic innovaive
sources of public inance and to a formula
of contribuions of each developed country
to ensure an adequate level of resources are
generated.
- Adopt a common measurement and reporing
framework and veriicaion procedures for
inancial assistance.
CAPACITY BUILDING
COP 16 should achieve the following to bolster
capacity building efforts:
• Immediately establish an adequately resourced and
properly mandated Technical Panel on Capacity
Building (CBTP).
• Mandate the CBTP (under the authority and subject
to the guidance of the COP) to oversee the design of a
dedicated ‘fast start’ capacity-building inancing window.
• Decide that a dedicated share of the fast start (201012) money should resource the CBTP in making a fast
start to design and construcion of the post-2012
capacity-building window.
• Task the CBTP to begin collaing, streamlining and
focusing naional proposals for adaptaion, technology,
REDD and miigaion-acion programmes and prioriies
with a view to enabling direct access to resources for
agreed capacity-building as quickly as possible.
• Decide that the inal agreement should require that
full, adequate and predictable capacity building
support should be a legally-binding obligaion of
developed country Paries, with consequences for
non-compliance.
COP17 should further:
• Finalise the insituional, administraive and legal
arrangements for a dedicated capacity-building
window within the post-2012 architecture. Ensure
the window is cross-cuing, aimed at eicient
delivery of resources, capable of rapidly focusing and
building in-country capacity to manage and deliver
naional adaptaion, technology, REDD and miigaion
resources and acions, aligned with developing
countries’ own sustainable development objecives.
• Operaionally, much of the capacity-building window
will have been constructed by COP16 decisions.
COP17 must decide on the exact nature of a legallybinding commitment to capacity-building as well as
precise modaliies for MRV.
TECHNOLOGY
COP16 should achieve the following technologyrelated milestones:
• Establish a Technology Execuive Commitee (TEC)
under the authority and guidance of the COP.
- The TEC should be linked to the Finance Fund to
determine, or make recommendaions on, what
projects and programmes should be funded.
- The TEC should have a mandate to develop
criteria for funding of projects and programmes
by COP17.
- The TEC should have a mandate to develop a
Global Technology Objecive by COP17.
- The TEC should have a mandate to develop
Global Technology Acion Plans or Roadmaps to
guide Climate Technology Centre (and regional
centres and members of the Climate Technology
Network).
- The TEC should have a mandate to develop, by
COP 17, criteria for MRV of:
- Regulatory acions supporing technology
cooperaion and sharing;
- Financial support for technology
cooperaion and sharing.
• Establish a Climate Technology Centre and Regional
Climate Innovaion Centres as part of the Climate
Technology Network – with funding to establish them.
• Create a one year High Level Commission on Climate
Change, Technology Cooperaion and Intellectual
Property Rights. The Commission should:
- Be mandated to examine if, when and how,
speciic intellectual property standards and
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Cancun Building Blocks – Climate Action Network International
tools may be a barrier or enabler of technology
innovaion and access;
- Report back to COP 17.
By COP17 we must further have in place:
• A dedicated Technology Cooperaion Mechanism
under the authority of the COP that would:
- Establish a Global Technology Objecive,
including a commitment to scale up public
funding to at least US$5bn per year for global
technology eforts (including RD&D, difusion
and capacity building); and to increase
renewable energy penetraion globally. This
should entail a sustained increase in public R&D
to at least double and then increase to ive
imes spending by 2020.
- Global Technology Roadmaps that outline
a strategy for Research Development,
Demonstraion and Difusion for a key set of
technologies drawing on Naional Technology
Needs Assessments.
- Establish a Technology Execuive Commitee
that would: oversee the Technology Roadmaps,
the work of regional and sub-regional climate
technology centres of excellence; and establish
criteria to ensure projects and support are
measurable, reportable and veriiable.
- Adopt a decision on a Declaraion on
Intellectual Property, Climate Change and
Technology Cooperaion and Sharing.
- Establish a mechanism to address patents and
related intellectual property issues to ensure
both increased innovaion and increased access
for technologies for miigaion and adaptaion.
The body should be able to propose a variety
of opions to address barriers, including:
funding for buy-down of license fees; using all
the lexibiliies in TRIPS; and patent sharing
arrangements.
• Agree to establish an Adaptaion Commitee. The
Commitee should report directly to the COP on
the adequacy of technical and inancial support
and also ensure overall coordinaion of adaptaion
eforts. It should support developing countries to
obtain informaion and build capacity to adapt to the
impacts of climate change, and have an oversight
role of the various adaptaion aciviies and elements
under the UNFCCC to ensure their adequacy and to
highlight gaps, separate from funding decisions. It
must be comprised of experts on adaptaion able to
provide technical and inancial guidance.
• Decide on measures to promote risk management
strategies, and to address loss and damage caused
by climate change, both extreme events (eg. Extreme
looding) and slow-onset risks that go beyond the
limits of adaptaion (eg. sea level rise, glacial retreat
or deseriicaion). This should include requesing
the SBI/Adaptaion Commitee to consider and
assess proposals for internaional insituional
opions at its 34th session, and a mandate to explore
compensaion for loss and damage caused by climate
change, within the UN system.
• Make clear linkages between plans and implementaion,
insituions and inance so that there is a legal
commitment to fund comprehensive and integrated
adaptaion plans and programmes that are in accordance
with the principles in the adaptaion framework.
• Establish and/or enhance regional centres in
developing countries.
• Establish coherence between technology support
and pragmaic need for adaptaion. Any technology
support for adaptaion must be backed by both
inance and capacity building for deployment.
• Create a clear link between the adaptaion and the
inance secion (Climate Fund) that guarantees long
term funding for adaptaion.
• Remove all references to response measures from the
adaptaion text and move to the miigaion secion.
COP17 should:
ADAPTATION
Regarding adaptation, COP 16 should:
• Agree an Adaptaion Framework, with principles that
focus on the paricular needs of the poorest and most
vulnerable people (including women, children, elderly
people, minority ethnic groups) and ecosystems,
ensuring transparency and paricipatory decisionmaking at all stages.
• Establish a regular and systemaic process to review
the adequacy on the scale and provision of funding
and associated impacts, safeguard measures and
vulnerability assessments in light of updated climate
change science and impacts:
- MRV on the provision of adequate inancial
support from Annex 1 paries;
- Local level independent monitoring and
evaluaion of adaptaion acions;
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Cancun Building Blocks – Climate Action Network International
- A comprehensive and integrated approach to
building resilience of poor communiies and
countries, focusing on principles to ensure
implementaion and commitment to a risk
reducion approach.
• Establish an internaional mechanism to address
loss and damage associated with climate change
impacts in developing countries that are paricularly
vulnerable to the adverse efects of climate change
providing support in paricular for the poorest and
most vulnerable people and ecosystems.
• Operaionalise an adaptaion commitee and regional
centres.
LEGAL ARCHITECTURE
A long-term legal architecture that is coherent, durable,
lexible, efecive, and legally binding is a fundamental
perquisite to the concerted internaional efort necessary
to avoid dangerous climate change.
Just as the Berlin Mandate provided clarity on legal form to
the negoiaing process that resulted in the Kyoto Protocol,
paries should agree a mandate at Cancun that provides
clarity to the legal form of the outcome to be agreed at
South Africa.
As a minimum the legal mandate should include a
second commitment period of the Kyoto Protocol, and a
complementary agreement under the LCA track including:
comparable miigaion commitments by the United States,
inancial commitments by developed countries, and
developing country acion. Both tracks should produce a
legally binding and enforceable outcome in accordance
with the principle of common but difereniated
responsibiliies.
In addiion to securing a mandate providing clarity as to
the overall aimed for outcome of the negoiaions, it will
be necessary that the Cancun package outlines a imeline,
workplan, number of meeings, and how the negoiaions
are to be conducted and in what format. The postCopenhagen uncertainty that has plagued the negoiaions
in 2010 cannot be coninued, if governments are serious
about the UNFCCC negoiaion process.
COP16 must also begin to put in place plans and a pathway
for a review and negoiaion process in order to determine
the future framework and commitments beyond the next
commitment period. This must begin in 2013, informed by
the latest science (including the 1.5o Technical Paper and
the IPCC 5th Assessment Report to be published in 2014)
and end in 2015 at the latest.
The core legal elements essenial to an efecive
architecture include:
• A coninuaion of the Kyoto Protocol with a second
commitment period;
• 1990 base year for developed countries miigaion
commitments;
• Enhanced naional reporing and review
requirements for both miigaion and inance
obligaions for all industrialized countries which build
on the framework established by Kyoto;
• Enhanced naional reporing and review
requirements for developing countries with greater
frequency of reporing;
• A regime for measurement, reporing and veriicaion
for developing country miigaion acion that is
supported by inance from developed countries;
• A strengthened compliance regime for all developed
countries building and improving on the Kyoto
compliance system incorporaing both facilitaive and
enforcement branches with oversight of inventory
and reporing obligaions and the dual commitments
of miigaion targets and inancing for developing
country acion;
• Inclusion of early warning triggers for those countries
at risk of non-compliance – the system cannot rely on
other countries providing referrals, but must be more
proacive and robust; and
• Establishment of a facilitaive mechanism for
developing countries experiencing diiculies in
implemening their miigaion acions and which
incorporate the key elements of capacity building for
developing country acions, both in preparaion of
their acions plans as well as in miigaion.
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Cancun Building Blocks – Climate Action Network International
CLIMATE ACTION NETWORK: REGIONAL/NATIONAL NODE CONTACT POINTS
North Africa
Salah Sahabi, RAC-Maghreb
salah_sahabi@yahoo.com
East Africa / Uganda
Geofrey Kamese, NAPE
kameseus@yahoo.com
West Africa
Emmanuel Seck, ENDA
ssombel@yahoo.fr
Southern Africa
Rajen Awotar, MAUDESCO (SARCAN)
maudesco@intnet.mu
South Africa
Dorah Lebelo, Greenhouse Project
dorahl@ghouse.org.za
Europe
Mathias Duwe, CAN-Europe
mathias@climnet.org
France
Morgane Creach
morgane@rac-f.org
Eastern Europe, Caucasus &
Central Asia
Irina Stavchuk, Naional Ecological
Centre, Ukraine
irina.stavchuk@necu.org.ua
Paciic
David Ngatae – Cook Islands CAN
cookscan@gmail.com
Marstella E. Jack – Federated States
of Micronesia CAN
johsna@gmail.com
Southeast Asia
Gurmit Singh
cetdem@po.jaring.my
China
Fei Xiaojing, IED
xiaojing.fei@ied.cn
Lain America
Victor Manuel Campos Cubas,
Centro Humboldt
vmanuelcampos@humboldt.org.ni
Tafue Lusama – Tuvalu CAN
vaitupumalie@yahoo.com
Brazil
Rubens Born, Vitae Civilis
rborn@vitaecivilis.org.br
Australia
Georgina Woods, CANA
g.woods@cana.net.au
United States
Peter Bahouth, USCAN
peterb@climatenetwork.org
Japan
Kimiko Hirata, Kiko Network
khirata@kikonet.org
Canada
Graham Saul, CAN-RAC Canada
gsaul@climateacionnetwork.ca
South Asia
Sanjay Vashist, CANSA
sanjayvashist@gmail.com
BUILDING BLOCKS
ESSENTIAL STEPS ON THE ROAD TO A FAIR,
AMBITIOUS AND BINDING DEAL
“Climate change is not going away. The risks –
and costs – of inaction grow each year. The more
we delay, the more we will have to pay – in lost
opportunities, resources and lives.”
– Ban Ki-moon, Secretary-General of the United Nations, July 2010
2
Climate Acion Network – Internaional is a coaliion
of roughly 500 environmental and development nongovernmental organizaions worldwide commited to
limiing human-induced climate change to ecologically
sustainable levels.
For further informaion on Climate Acion Network
Internaional, including more detail on policy posiions,
please see our website: www.climatenetwork.org
Or contact:
David Turnbull
Director
Email: dturnbull@climatenetwork.org
Julie-Anne Richards
Internaional Policy Coordinator
Email: jrichards@climatenetwork.org
This document was prepared by Julie-Anne Richards,
with input from Climate Acion Network Internaional’s
members. We thank all of them for their input, in
paricular we would like to thank CAN’s policy working
group coordinators who played a large role in puing
this document together: Sven Harmeling, Germanwatch;
Rachel Berger, Pracical Acion; Raju Pandit Chhetri, United
Mission to Nepal (UMN); Sara Shaw, Tearfund; Wael
Hmaidan, IndyAct; Nina Jamal, IndyAct; Raman Mehta,
AcionAid; Steve Herz, Greenpeace; Gaines Campbell, Vitae
Civilis; John Lanchbery, RSPB; Chris Henschel, Canadian
Parks and Wilderness Society; Melanie Coath, RSPB;
Dalindyebo Shabalala; Tirthankar Mandal, WWF India;
Victor Menoi, Internaional Forum on Globalizaion;
Stephen Porter, Centre for Internaional Environmental
Law; Srinivas Krishnaswamy; Eva Filzmoser, CDM Watch;
Naoyuki Yamagishi, WWF Japan; Pat Finnegan, Grian.
October 2010
Cancun Building Blocks – Climate Action Network International
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Cancun Building Blocks – Climate Action Network International
SUMMARY
COP16 at Cancun must be a signiicant stepping stone to
a full fair, ambiious and binding deal at COP17 in South
Africa. Paries at COP16 must take decisions on important
policy areas, establish a clear vision for COP17, and agree
a process for reaching a full fair, ambiious & binding deal,
including the following benchmarks1:
A global understanding of ambition and
shared effort
• COP16 should commission a technical paper on
the scieniic, technical and socio-economic issues
relaing to temperature increase of 1.5°C to inform
COP17 decisions.
• COP16 should establish a mandate to agree an
equitable efort sharing approach between developed
and developing countries by COP17, consistent with
the equity principles of the UNFCCC, the historical
responsibility of developed countries, and the right to
sustainable development of developing countries.
Developed country emission reductions
• At COP16 developed countries should agree an
aggregate reducion target of more than 40% below
1990 by 2020. Should they fail to commit to this
target, they must acknowledge the gigatonne gap
between current pledges and science based targets,
and agree a mandate to negoiate by COP17 the
needed aggregate reducion target of more than 40%
below 1990 levels by 2020.
- Developed countries should commit to a
mandate to negoiate by COP17 individual
legally binding quaniied emission reducion
commitments (QERCs) relecing comparable
efort and summing to the needed aggregate
target of more than 40%.
- Agree at COP16 that each developed country
will produce a Zero Carbon Acion Plan by 2012.
- At COP16 developed countries should
clearly state that their emission reducion
commitments will be subject to an efecive
measurement, reporing and veriicaion
(MRV) and compliance system within the
Kyoto Protocol, whilst ensuring comparable
MRV and compliance for the United States.
COP 17 should codify these stringent MRV and
compliance rules.
- COP16 should agree robust rules to ensure
developed countries honestly meet their
emission reducion targets by minimising
loopholes, including:
- Land use, land use change and forestry
rules that increase accountability and
strengthen the level of ambiion of
developed countries such that forestry
and land use sectors deliver emissions
reducions.
- Market mechanism rules that improve
environmental integrity, prevent double
couning, and strengthen the ability to
transform economies.
- Rules that minimise damage from hot air
(surplus AAUs).
Developing country mitigation actions
• At COP16 developing countries should agree to
produce climate resilient Low Carbon Acion Plans,
opional for least developed countries and small
island developing states, coningent upon support
from developed countries.
- COP16 should establish a mechanism to enable
developing country naionally appropriate
miigaion acions (NAMAs) to be matched with
support. Guidelines including MRV, should be
adopted by COP17.
- At COP17 developing countries as a group should
commit to developing NAMAs amouning to the
deviaion from business as usual ideniied in the
efort sharing approach, whose implementaion
would be coningent on the necessary support
being provided by developed countries.
- At COP17 a science-based review process
should be established to idenify the total
miigaion forecast from developing country
LCAPs and NAMAs, and assess whether this is
in line with the miigaion needed in developing
countries to contribute to keeping warming
below 1.5°C, as ideniied in the efort sharing
approach. A process should be established
to address any gap (or shorfall) in miigaion
occurring in developing countries. This is
likely to involve an increase in funding from
developed countries.
1 CAN recognises a diversity of views within its 500 members on the views expressed in this summary. Detailed references are provided throughout.
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Cancun Building Blocks – Climate Action Network International
• At COP16 all Paries shall collecively aim to stop
deforestaion and degradaion of natural forests
and related emissions completely, by 2020. A
commitment to suicient inance is required to meet
this goal. Studies indicate that halving emissions by
2020 would cost between $15 and 35 billion annually
in 2020.
Supporting global efforts to address climate
change and adapt to its effects
• COP16 should establish a Climate Fund to receive the
vast majority of long-term inance.
- COP16 should establish a governance structure
for the new fund that is transparent, regionally
balanced and ensures the COP decides policies,
programme prioriies and eligibility criteria. It
should enable direct access to funds.
- COP 16 should iniiate a process to secure
innovaive sources of public funding by COP 17.
COP17 must agree to implement speciic innovaive
sources of public inance and to a formula of
contribuions from each developed country.
- COP 16 must build on the $100 billion
commitment made in Copenhagen, by agreeing
that developed countries will scale up their
support to new and addiional public inance
by 2020 and establish a review process to
periodically reassess the adequacy of inancial
support, the irst assessment being completed
in 2015.
- COP 16 should establish common measurement
and reporing formats, on inancial support by
developed countries, including annual ‘climate
inance inventories’, to make comparisons and
veriicaion possible.
• COP 16 should immediately establish a Capacity
Building Technical Panel, with suicient resources to
begin funding fast-start capacity building for naional
proposals on adaptaion, technology, REDD and
miigaion-acion programmes and prioriies.
• COP 16 should establish a Technology Execuive
Commitee (TEC) to develop, by COP17, a Global
Technology Objecive and Global Technology Acion
Plans or Roadmaps to guide Climate Technology
Centres (and regional centres and members of the
Climate Technology Network).
• COP 16 must agree an Adaptaion Framework to
urgently and signiicantly scale up acion at the
local, naional, regional and internaional levels and
ensure focus on the needs of the poorest and most
vulnerable people and ecosystems.
- COP16 should establish an Adaptaion
Commitee to coordinate adaptaion eforts;
support developing countries to obtain
informaion, build capacity to adapt to the
impacts of climate change; and ensure that
suicient technology and inancial support
is provided in light of updated science and
impacts.
- COP 16 should establish a mandate to address
loss and damage caused by extreme and
slow-onset climate change beyond the limits
of adaptaion, eg severe looding or sea level
rise, deseriicaion. COP17 must create a
mechanism to address loss and damage,
especially for the poorest and most vulnerable.
Clarity on the legal framework and path
forward
COP 16 should establish a mandate to provide clarity on
the legal form of the outcome to be agreed at COP17.
As a minimum the legal mandate should include a
second commitment period of the Kyoto Protocol, and a
complementary agreement under the LCA track including:
comparable miigaion commitments by the United States,
inancial commitments by developed countries, and
developing country acion. Both tracks should produce a
legally binding and enforceable outcome in accordance
with the principle of common but difereniated
responsibiliies.
COP16 must also outline a imeline, workplan, number
of meeings, and the format of negoiaions in order to
provide certainty to the negoiaions.
Addiionally COP16 must begin to plan for the negoiaion
of commitments beyond the next commitment period,
foreshadowing a process informed by the latest science,
including the 1.5o Technical Paper and the IPCC 5th
Assessment Report, ending in 2015 at the latest.
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Cancun Building Blocks – Climate Action Network International
THE POST-COPENHAGEN ROAD
A fair, ambiious and binding deal is needed more urgently
than ever. Climate science is more compelling by the day.
Impacts are coming harder and faster. Disastrous looding
in Pakistan, heat waves and forest ires in Russia and
hotest recorded temperatures around the globe, amongst
other devastaing climate-related events, all point to the
need for urgent acion. Levels of warming once thought to
be safe, may well not be, 1.5˚C is the new 2˚C.
Negotiations Post-Copenhagen
Copenhagen was a watershed moment for public interest
and support for climate acion – and people have not lost
interest. More people in more countries than ever have
put their governments on noice that they expect a fair,
ambiious and binding global deal to be agreed urgently.
Trust-building is essenial ater the disappointment of
Copenhagen. Developed country leadership must be at
the core of trust building eforts. Countries must show
their commitment to the UNFCCC process by driving it
forward with poliical will and lexible posiions, rather than
endless rounds of repeiive negoiaions. Many countries
are troublingly pessimisic for Cancun, and are working to
lower expectaions. While others, including countries most
vulnerable to climate change, maintain high expectaions.
Challenges ahead of Cancun
There are many challenges to geing a full fair, ambiious
and binding deal at Cancun, including:
• Lack of a shared vision for the ulimate objecive of
the agreement, and the equitable allocaion of the
remaining carbon budget and emissions reducion/
limitaion commitments;
• Sharp divisions on the legal form of an eventual
outcome;
• Failure of the US Senate to pass comprehensive
legislaion this year; and
• Current economic diiculies facing many countries,
which make it diicult to mobilize the substanial
commitments to long-term climate inance needed as
part of any ambiious agreement.
Positive moves afoot
However, more and more countries, both developing and
developed, are stepping up their eforts to pursue lowcarbon development and adaptaion, despite the absence
of an internaional agreement. This can be seen in a variety
of ways:
• Investments in renewable energies have coninued
their exponenial growth, increasing to 19% of global
energy consumed;
• Progressive countries are working to move the
negoiaions forward;
• There is a growing percepion that low-carbon and
climate-resilient development is the only opion to
sustainably ensure the right to development and
progress in poverty reducion.
So, what does a pathway forward look like?
Firstly we must learn the lessons of Copenhagen. The
“nothing’s agreed unil everything’s agreed” dynamic from
Copenhagen could mean that nothing would be agreed
in Cancun. An agreement in Cancun should instead be a
balanced and signiicant step toward reaching a full fair,
ambiious & binding deal at COP 17 in South Africa. This
will require paries to work together in good faith to create
suicient gains at Cancun, and a clear roadmap to South
Africa. This paper outlines how that could be achieved.
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Cancun Building Blocks – Climate Action Network International
MITIGATION
Level of ambition
• Global emissions must peak in the next 5 year
commitment period (around 2015).
• COP16 should commission a technical paper for
release well before June 2011 on the scieniic,
technical and socio-economic issues relaing to
temperature increase of 1.5°C above pre-industrial
levels. The 1.5°C Technical Paper should inform,
inter alia, emissions reducions and equitable efort
sharing deliberaions.
Effort sharing
• COP16 must establish a mandate for an equitable
efort sharing approach between developed and
developing countries to be agreed by COP17. This must
be consistent with the equity principles of the UNFCCC
including common but difereniated responsibiliies
and respecive capabiliies. All countries must play a
part in the global efort, but developed countries must
fairly and equitably take the lead. The efort sharing
approach could establish the level of acion to be taken
by developed countries, take into account the level of
autonomous acion planned in developing countries,
and calculate the level of supported emissions
reducions required in developing countries, and the
corresponding funding that needs to be provided by
developed countries to enable miigaion aciviies in
developing countries.
COP16 developed countries
• Developed countries should agree an aggregate
reducion target of more than 40% below 1990 by
20202.
• Should developed countries fail to commit to the
needed aggregate target, they must acknowledge the
signiicant gigatonne gap between current pledges
and what science demands. Paries should then
agree a mandate to negoiate by COP17 the needed
aggregate reducion target, that is, more than 40%
below 1990 levels by 20203.
• All developed countries should commit to a mandate
to negoiate by COP17 individual legally binding
quaniied emission reducion commitments (QERCs),
summing to the needed aggregate target and
relecing comparable efort4.
• Developed countries should agree that their
emission reducion commitments will be subject to
a comprehensive and efecive MRV and compliance
system building on the provisions in the Kyoto
Protocol, and ensuring comparable MRV and
compliance for the United States.
• Guidelines should be agreed for producion of Zero
Carbon Acion Plans (ZCAPs) by each developed
country, to be completed iniially by 2012, providing a
long term trajectory to 2050.
• Robust rules should be agreed to improve environmental
integrity and minimise loopholes, including:
- Accouning for emissions and removals from
Land Use, Land Use Change and Forestry
(LULUCF) must be based on actual changes
in anthropogenic emissions seen by the
atmosphere. The level of ambiion of developed
countries must be strengthened by LULUCF
rules that have accouning integrity and provide
incenives for the protecion and enhancement
of sinks and reservoirs and the delivery of
emission reducions from this sector.
- Developed countries must account for any
increases in emissions from forest management
(mandatory).
- COP16 should establish an ambiious work
programme to resolve data quality issues in
LULUCF that leads to the eventual introducion
of comprehensive accouning. Accouning
for emissions/removals from cropland
management, grazing land management and
revegetaion should become mandatory using
a hotspots approach as soon as data quality
issues can be resolved. A new acivity should
also be added for the accouning of emissions
from wetland management.
- Emissions resuling from bioenergy producion
must be accounted for either in the energy or
LULUCF sector.
- Market mechanism rules that improve
environmental integrity and strengthen the
ability to make the transformaional change
needed to solve climate change. These rules
must prevent double couning. In other words
developed countries should not count the
purchase of ofsets or generaion of ofsets
2 Environmental Defense Fund, Natural Resources Defense Council and The Nature Conservancy do not endorse this posiion.
3 Environmental Defense Fund, Natural Resources Defense Council and The Nature Conservancy do not endorse this posiion.
4 One possible way forward would be to have a common space discussion under 1bi of the LCA, which would allow all developed countries to discuss their
future commitments together, so that efort can indeed be compared and efort divided equitably. Outputs from this discussion could then be brought back in to
the KP discussions.
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Cancun Building Blocks – Climate Action Network International
for their own compliance as meeing their
obligaion to provide substanial, secure,
predictable MRV public inance for miigaion
and adaptaion in developing countries. Nor
should the emissions reducions achieved via
ofsets be counted towards both developed
countries’ emission reducion commitments
and the deviaion from BAU in developing
countries.
- Rules must be agreed to minimise damage
from hot air / surplus AAUS in the second
commitment period. These could include
seing a discount factor and/or adjustments
of aggregate emission reducion targets for all
developed countries to compensate.
COP 16 Developing Countries
• A imetable, guidelines and necessary support for
developing countries to produce climate resilient Low
Carbon Acion Plans (LCAP) should be agreed. Where
possible LCAPS should be delivered by 2012, with a
later date agreed for developing countries with low
capacity. LCAPS should be opional for LDCs and SIDS.
• A facility/mechanism for developing country NAMAs
for which support is sought should be established.
A mandate must be given to SBSTA and SBI to develop
relevant NAMA guidelines and technical issues,
including MRV, for adopion by COP17.
• The scieniic review and MRV at large must serve a
facilitaive, rather than an enforcement or compliance
funcion, for developing countries.
COP 17 Developed Countries
• Developed countries as a group must commit to an
aggregate reducion target of more than 40% below
1990 levels by 20205.
• Developed countries should commit to individual
legally binding QERCs, summing to the needed
aggregate target and relecing comparable efort.
• A robust MRV and compliance mechanism must be
established, at least as strong as that currently in
the Kyoto Protocol and ensuring comparable MRV
and compliance for the United States, to ensure cuts
take place.
below 1990 levels by 2020, there is no room – or
indeed need – for ofsets6.
• Developed countries should have established an
accouning system for emissions and removals from
LULUCF that strengthens developed country ambiion
and is based on changes in anthropogenic emissions
seen by the atmosphere.
• Developed countries should submit preliminary
informaion about their Zero Carbon Acion Plans (ZCAPs)
which should be conirmed as being due in 2012.
COP17 Developing Countries
• Developing countries as a group should commit to
developing NAMAs amouning to the quaniied
substanial deviaion from business as usual
ideniied in the equitable efort sharing approach,
whose implementaion would be coningent on the
necessary support, technology and capacity building
being provided by developed countries.
• NAMAs should form part of Low Carbon Acion Plans
(LCAPS), with the necessary support from developed
countries. LCAPs should be opional for LDCs and SIDS.
A climate fund must be fully established to ensure
developed countries meet their inance obligaions
and developing countries implement their acions.
• A science based review process should be established
to idenify the total miigaion forecast from
developing country LCAPs and NAMAs, and assess
whether this is in line with the miigaion in developing
countries needed, in the efort sharing approach
agreed, to keep warming below 1.5oC. A process
should be established to address any gap (or shorfall)
in miigaion occurring in developing countries. This is
likely to involve an increase in funding from developed
countries to fund the emissions reducions required in
developing countries.
REDD
Reduced Emissions from Deforestation and
Degradation
An agreement on REDD at COP 16 in Cancun should include
the following:
• A goal along the following lines for reducing emissions:
• The use of ofsets must be limited. As long as
developed country targets fall short of ensuring that
domesic emissions are reduced by at least 30%
- All Paries shall collecively aim to reduce
greenhouse gas emissions from deforestaion
5 Environmental Defense Fund, Natural Resources Defense Council and The Nature Conservancy do not endorse this posiion.
6 Conservaion Internaional, Environmental Defense Fund, Natural Resources Defense Council, The Nature Conservancy, The Woods Hole Research Center, and
IPAM (Amazon Environmental Research Insitute) do not endorse this posiion.
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Cancun Building Blocks – Climate Action Network International
and forest degradaion of natural forests
in developing countries, with the objecive
of stopping deforestaion and degradaion
of natural forests and related emissions
completely, by 2020.
• For the conservaion of exising carbon stocks,
enhancement of carbon stocks and sustainable
management of forests a second objecive could be:
- All Paries shall collecively aim to conserve
exising natural and modiied natural forests by
2020, ceasing conversion and instead restoring
degraded natural forest. In addiion, all paries
should undertake the sustainable management
of forests and enhance forest carbon stocks.
• These goals should be coningent upon adequate,
predictable and sustainable inance provided in a
transparent manner. This could be in terms of a
quaniied commitment; for example, a number of
studies have indicated that to halve emissions by
2020 would cost between $15 and 35 billion in 2020.
Alternaively, there could be a commitment simply to
supply suicient inance to allow the carbon-related
goals to be met.
• Interim REDD inance should prioriise capacity
building.
• Social, environmental and governance safeguards
should be adopted and operaionalised; they should
also be made subject to independent and veriiable
monitoring and reporing (along with the carbon and
inance provisions).
• All Paries should address drivers of deforestaion
and degradaion, rather than just developing country
paries as proposed at present.
• A Decision tasking SBSTA to address outstanding
REDD+ technical issues is essenial if the
consideraion of these issues is to be concluded in
South Africa.
FINANCE
With respect to international inancing for climate
actions, COP16 should address the following:
• Establish a Climate Fund under the COP as an
operaing enity of the inancial mechanism of the
Convenion and designate it to receive the vast
majority of long-term inance.
• Establish a governance structure for the new Fund
that (1) is transparent and accountable; (2) gives
the COP the authority to decide on its policies,
programme prioriies and eligibility criteria; and (3) is
governed by a Board whose membership is equitably
balanced among the 5 UN regions, and has addiional
designated seats for most vulnerable countries and
civil society/afected community members, and is
approved by the COP.
• Establish procedures for creaing funding “windows”
for e.g. adaptaion, miigaion, technology transfer,
REDD and capacity building.
• Establish a secretariat for the Fund, independent of
the trustee, and directs the board, in consultaion
with relevant experts, to administer a compeiive
bidding process for a trustee.
• Enable direct access to funds by naional implemening
and funding eniies that ensure access by subnaional
governments and non-governmental eniies.
• Establish a new body under the authority of the COP
to oversee the new climate fund and other operaing
eniies of the inancial mechanism, coordinate with
other delivery channels of climate inance, and execute
other funcions delegated by the COP.
• Regarding sources:
- Iniiate a process under the UNFCCC to
secure innovaive sources of public funding in
accordance with principles of the Convenion
by COP17. This process should be informed,
where appropriate, by the indings of other
iniiaives such as the High Level Advisory Group
on Climate Finance and the Leading Group on
Innovaive Financing for Development.
• Regarding scale:
- Build on the commitments made in Copenhagen,
by agreeing that by 2020, developed countries
will provide at least $100 billion in public inance
that is new and addiional to exising aid targets,
as a signiicant milestone towards achieving the
public funding actually required.
- Establish a review process to periodically
reassess the adequacy of inancial pledges in
light of the best available climate science, the
degree of emissions reducions achieved, and
esimates of developing country needs. The irst
assessment should be completed in 2015.
- Establish inancing targets for the 2013-2020
ime period.
• Regarding Finance MRV:
- Establish a process to adopt common
measurement and reporing formats for inance
contribuions to ensure consistency of reporing
and make veriicaion and comparisons possible.
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- Agree to include annual ‘climate inance
inventories’ as part of annual reporing.
By COP17:
- Approve the rules, procedures, and guidelines
of the fund including policies to ensure that
funded proposals: 1) prioriize the needs of
women and other vulnerable populaions; 2)
respect rights, livelihoods, ecosystems and
naional plans and are 3) developed through
procedures that are paricipatory, transparent
and accountable.
- Agree to implement speciic innovaive
sources of public inance and to a formula
of contribuions of each developed country
to ensure an adequate level of resources are
generated.
- Adopt a common measurement and reporing
framework and veriicaion procedures for
inancial assistance.
CAPACITY BUILDING
COP 16 should achieve the following to bolster
capacity building efforts:
• Immediately establish an adequately resourced and
properly mandated Technical Panel on Capacity
Building (CBTP).
• Mandate the CBTP (under the authority and subject
to the guidance of the COP) to oversee the design of a
dedicated ‘fast start’ capacity-building inancing window.
• Decide that a dedicated share of the fast start (201012) money should resource the CBTP in making a fast
start to design and construcion of the post-2012
capacity-building window.
• Task the CBTP to begin collaing, streamlining and
focusing naional proposals for adaptaion, technology,
REDD and miigaion-acion programmes and prioriies
with a view to enabling direct access to resources for
agreed capacity-building as quickly as possible.
• Decide that the inal agreement should require that
full, adequate and predictable capacity building
support should be a legally-binding obligaion of
developed country Paries, with consequences for
non-compliance.
COP17 should further:
• Finalise the insituional, administraive and legal
arrangements for a dedicated capacity-building
window within the post-2012 architecture. Ensure
the window is cross-cuing, aimed at eicient
delivery of resources, capable of rapidly focusing and
building in-country capacity to manage and deliver
naional adaptaion, technology, REDD and miigaion
resources and acions, aligned with developing
countries’ own sustainable development objecives.
• Operaionally, much of the capacity-building window
will have been constructed by COP16 decisions.
COP17 must decide on the exact nature of a legallybinding commitment to capacity-building as well as
precise modaliies for MRV.
TECHNOLOGY
COP16 should achieve the following technologyrelated milestones:
• Establish a Technology Execuive Commitee (TEC)
under the authority and guidance of the COP.
- The TEC should be linked to the Finance Fund to
determine, or make recommendaions on, what
projects and programmes should be funded.
- The TEC should have a mandate to develop
criteria for funding of projects and programmes
by COP17.
- The TEC should have a mandate to develop a
Global Technology Objecive by COP17.
- The TEC should have a mandate to develop
Global Technology Acion Plans or Roadmaps to
guide Climate Technology Centre (and regional
centres and members of the Climate Technology
Network).
- The TEC should have a mandate to develop, by
COP 17, criteria for MRV of:
- Regulatory acions supporing technology
cooperaion and sharing;
- Financial support for technology
cooperaion and sharing.
• Establish a Climate Technology Centre and Regional
Climate Innovaion Centres as part of the Climate
Technology Network – with funding to establish them.
• Create a one year High Level Commission on Climate
Change, Technology Cooperaion and Intellectual
Property Rights. The Commission should:
- Be mandated to examine if, when and how,
speciic intellectual property standards and
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Cancun Building Blocks – Climate Action Network International
tools may be a barrier or enabler of technology
innovaion and access;
- Report back to COP 17.
By COP17 we must further have in place:
• A dedicated Technology Cooperaion Mechanism
under the authority of the COP that would:
- Establish a Global Technology Objecive,
including a commitment to scale up public
funding to at least US$5bn per year for global
technology eforts (including RD&D, difusion
and capacity building); and to increase
renewable energy penetraion globally. This
should entail a sustained increase in public R&D
to at least double and then increase to ive
imes spending by 2020.
- Global Technology Roadmaps that outline
a strategy for Research Development,
Demonstraion and Difusion for a key set of
technologies drawing on Naional Technology
Needs Assessments.
- Establish a Technology Execuive Commitee
that would: oversee the Technology Roadmaps,
the work of regional and sub-regional climate
technology centres of excellence; and establish
criteria to ensure projects and support are
measurable, reportable and veriiable.
- Adopt a decision on a Declaraion on
Intellectual Property, Climate Change and
Technology Cooperaion and Sharing.
- Establish a mechanism to address patents and
related intellectual property issues to ensure
both increased innovaion and increased access
for technologies for miigaion and adaptaion.
The body should be able to propose a variety
of opions to address barriers, including:
funding for buy-down of license fees; using all
the lexibiliies in TRIPS; and patent sharing
arrangements.
• Agree to establish an Adaptaion Commitee. The
Commitee should report directly to the COP on
the adequacy of technical and inancial support
and also ensure overall coordinaion of adaptaion
eforts. It should support developing countries to
obtain informaion and build capacity to adapt to the
impacts of climate change, and have an oversight
role of the various adaptaion aciviies and elements
under the UNFCCC to ensure their adequacy and to
highlight gaps, separate from funding decisions. It
must be comprised of experts on adaptaion able to
provide technical and inancial guidance.
• Decide on measures to promote risk management
strategies, and to address loss and damage caused
by climate change, both extreme events (eg. Extreme
looding) and slow-onset risks that go beyond the
limits of adaptaion (eg. sea level rise, glacial retreat
or deseriicaion). This should include requesing
the SBI/Adaptaion Commitee to consider and
assess proposals for internaional insituional
opions at its 34th session, and a mandate to explore
compensaion for loss and damage caused by climate
change, within the UN system.
• Make clear linkages between plans and implementaion,
insituions and inance so that there is a legal
commitment to fund comprehensive and integrated
adaptaion plans and programmes that are in accordance
with the principles in the adaptaion framework.
• Establish and/or enhance regional centres in
developing countries.
• Establish coherence between technology support
and pragmaic need for adaptaion. Any technology
support for adaptaion must be backed by both
inance and capacity building for deployment.
• Create a clear link between the adaptaion and the
inance secion (Climate Fund) that guarantees long
term funding for adaptaion.
• Remove all references to response measures from the
adaptaion text and move to the miigaion secion.
COP17 should:
ADAPTATION
Regarding adaptation, COP 16 should:
• Agree an Adaptaion Framework, with principles that
focus on the paricular needs of the poorest and most
vulnerable people (including women, children, elderly
people, minority ethnic groups) and ecosystems,
ensuring transparency and paricipatory decisionmaking at all stages.
• Establish a regular and systemaic process to review
the adequacy on the scale and provision of funding
and associated impacts, safeguard measures and
vulnerability assessments in light of updated climate
change science and impacts:
- MRV on the provision of adequate inancial
support from Annex 1 paries;
- Local level independent monitoring and
evaluaion of adaptaion acions;
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Cancun Building Blocks – Climate Action Network International
- A comprehensive and integrated approach to
building resilience of poor communiies and
countries, focusing on principles to ensure
implementaion and commitment to a risk
reducion approach.
• Establish an internaional mechanism to address
loss and damage associated with climate change
impacts in developing countries that are paricularly
vulnerable to the adverse efects of climate change
providing support in paricular for the poorest and
most vulnerable people and ecosystems.
• Operaionalise an adaptaion commitee and regional
centres.
LEGAL ARCHITECTURE
A long-term legal architecture that is coherent, durable,
lexible, efecive, and legally binding is a fundamental
perquisite to the concerted internaional efort necessary
to avoid dangerous climate change.
Just as the Berlin Mandate provided clarity on legal form to
the negoiaing process that resulted in the Kyoto Protocol,
paries should agree a mandate at Cancun that provides
clarity to the legal form of the outcome to be agreed at
South Africa.
As a minimum the legal mandate should include a
second commitment period of the Kyoto Protocol, and a
complementary agreement under the LCA track including:
comparable miigaion commitments by the United States,
inancial commitments by developed countries, and
developing country acion. Both tracks should produce a
legally binding and enforceable outcome in accordance
with the principle of common but difereniated
responsibiliies.
In addiion to securing a mandate providing clarity as to
the overall aimed for outcome of the negoiaions, it will
be necessary that the Cancun package outlines a imeline,
workplan, number of meeings, and how the negoiaions
are to be conducted and in what format. The postCopenhagen uncertainty that has plagued the negoiaions
in 2010 cannot be coninued, if governments are serious
about the UNFCCC negoiaion process.
COP16 must also begin to put in place plans and a pathway
for a review and negoiaion process in order to determine
the future framework and commitments beyond the next
commitment period. This must begin in 2013, informed by
the latest science (including the 1.5o Technical Paper and
the IPCC 5th Assessment Report to be published in 2014)
and end in 2015 at the latest.
The core legal elements essenial to an efecive
architecture include:
• A coninuaion of the Kyoto Protocol with a second
commitment period;
• 1990 base year for developed countries miigaion
commitments;
• Enhanced naional reporing and review
requirements for both miigaion and inance
obligaions for all industrialized countries which build
on the framework established by Kyoto;
• Enhanced naional reporing and review
requirements for developing countries with greater
frequency of reporing;
• A regime for measurement, reporing and veriicaion
for developing country miigaion acion that is
supported by inance from developed countries;
• A strengthened compliance regime for all developed
countries building and improving on the Kyoto
compliance system incorporaing both facilitaive and
enforcement branches with oversight of inventory
and reporing obligaions and the dual commitments
of miigaion targets and inancing for developing
country acion;
• Inclusion of early warning triggers for those countries
at risk of non-compliance – the system cannot rely on
other countries providing referrals, but must be more
proacive and robust; and
• Establishment of a facilitaive mechanism for
developing countries experiencing diiculies in
implemening their miigaion acions and which
incorporate the key elements of capacity building for
developing country acions, both in preparaion of
their acions plans as well as in miigaion.
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Cancun Building Blocks – Climate Action Network International
CLIMATE ACTION NETWORK: REGIONAL/NATIONAL NODE CONTACT POINTS
North Africa
Salah Sahabi, RAC-Maghreb
salah_sahabi@yahoo.com
East Africa / Uganda
Geofrey Kamese, NAPE
kameseus@yahoo.com
West Africa
Emmanuel Seck, ENDA
ssombel@yahoo.fr
Southern Africa
Rajen Awotar, MAUDESCO (SARCAN)
maudesco@intnet.mu
South Africa
Dorah Lebelo, Greenhouse Project
dorahl@ghouse.org.za
Europe
Mathias Duwe, CAN-Europe
mathias@climnet.org
France
Morgane Creach
morgane@rac-f.org
Eastern Europe, Caucasus &
Central Asia
Irina Stavchuk, Naional Ecological
Centre, Ukraine
irina.stavchuk@necu.org.ua
Paciic
David Ngatae – Cook Islands CAN
cookscan@gmail.com
Marstella E. Jack – Federated States
of Micronesia CAN
johsna@gmail.com
Southeast Asia
Gurmit Singh
cetdem@po.jaring.my
China
Fei Xiaojing, IED
xiaojing.fei@ied.cn
Lain America
Victor Manuel Campos Cubas,
Centro Humboldt
vmanuelcampos@humboldt.org.ni
Tafue Lusama – Tuvalu CAN
vaitupumalie@yahoo.com
Brazil
Rubens Born, Vitae Civilis
rborn@vitaecivilis.org.br
Australia
Georgina Woods, CANA
g.woods@cana.net.au
United States
Peter Bahouth, USCAN
peterb@climatenetwork.org
Japan
Kimiko Hirata, Kiko Network
khirata@kikonet.org
Canada
Graham Saul, CAN-RAC Canada
gsaul@climateacionnetwork.ca
South Asia
Sanjay Vashist, CANSA
sanjayvashist@gmail.com